Depends on how you read it. It's an abbreviated headline format, where important but small words are omitted to have a punchier and shorter headline. It's comm

Depends on how you read it. It's an abbreviated headline format, where important but small words are omitted to have a punchier and shorter headline. It's common with headlines like "<event> to <effect>". Like "rising interests to cause concern for home owners". I.e it's about causality/effect, not intention. To make it more explicit, what are the omitted words? Probably something like "[That] India bans wheat exports [is expected] to deepen [a/the] global food crisis". Or maybe [risks] or [could lead]?